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The Role of Wetlands in Sustainable Flood Management

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The Role of Wetlands in Sustainable Flood Management GO WITH THE FLOW the natural approach to sustainable flood management in Scotland A report by Caroline Davies RSPB Scotland March 2004 GO WITH THE FLOW the natural approach to sustainable flood management in Scotland Report contents Page Summary 4 1 Introduction 6 1.1 The current situation 6 1.2 A new opportunity 7 1.3 What is sustainable flood management? 8 2 Flooding in Scotland 10 2.1 A real risk 10 2.2 Responsibilities 10 2.3 Appraisal of flood defence schemes 11 2.4 Flood data 12 2.5 Flood awareness 12 2.6 National Flooding Framework (NFF) 13 3 The new legislative context 14 3.1 Water Framework Directive (WFD) 2000/60/EC 14 3.2 The Water Environment and Water Services (Scotland) Act 2003 18 3.3 Key amendments to Water Environment and Water Services 20 (Scotland) Bill as introduced 4 Natural systems and soft engineering 24 4.1 Hard engineering: The usual response to flooding 24 4.2 Soft engineering: The alternative 24 5 Catchment thinking: Integration with key policy areas 27 5.1 Local authorities and planning 27 5.2 Agriculture Policy 31 5.3 Forestry 36 5.4 Deer management 37 5.5 Biodiversity Action Plans and the Scottish Biodiversity Strategy 38 5.6 Role of the Scottish Environment Protection Agency 43 5.7 Duty of Scottish Ministers 44 1 6 Case studies 45 6.1 Insh Marshes, Strathspey 45 6.2 The Greater Clyde (South) 48 6.3 Strathearn, Perthshire 52 6.4 Moray Communities 54 7 Conclusions 56 8 Recommendations 57 9 Glossary 60 10 Abbreviations 62 2 “This bill is based on the premise that the environment is integral to the quality of life of every person who lives in this country…… .I will reflect on how the bill has been improved during its passage through committees. We have included provisions that will see the promotion of sustainable approaches to flood management …..we have also made much clearer the bill’s protection of wetlands as an important constituent of the water cycle. The push for sustainable development is now expressly provided for in the bill……………The bill is good for the people of Scotland and for its environment. It is good for the communities who share the environment and the individuals who are involved with it. We are often behind on the implementation of European directives but, for once, the bill is in good time. The result of that work is a bill that will provide us with a platform to protect Scotland’s water environment for generations to come.” Minister for Environment and Rural Development, Ross Finnie MSP Water Environment and Water Services (Scotland) Bill, Stage 3 debate, 29th January 2003 3 Summary “The world we share is given in trust. Every choice we make regarding the earth, air and water around us should be made with the objective of preserving it for all generations to come. That seems to me to be at the heart of the philosophy behind the Bill.” Minister for the Environment and Rural Development, Ross Finnie MSP Water Environment and Water Services (Scotland) Bill, Stage 1 debate, 30th October 2002 RSPB Scotland welcomes the introduction of legislation which will transpose the EU Water Framework Directive (WFD)1 in Scotland – the Water Environment and Water Services Act, 2003 (WEWS Act). The Scottish Executive is to be congratulated on the timely introduction of this Act which was considered and passed by the Scottish Parliament. Our evidence, as part of Scottish Environment Link, is acknowledged to have strengthened the Act, which should result in better management and protection of our natural water environment. Scotland now leads the way on implementing this important new Directive. The rigorous and forward thinking approach of the Parliament’s Transport and Environment Committee in its consideration of the Bill led to a number of key amendments which can change the way we deal with flooding in Scotland. There is now a duty on responsible authorities to promote sustainable flood management. An important link between the role of wetland habitats in tackling flooding problems and helping to achieve the environmental objectives required by the WFD was also established. The primary legislative framework is now in place and secondary regulations which will detail the practicalities of implementing this new approach are being prepared. What does this report do? This report outlines the context and background for the new legislation. It suggests a definition for “sustainable flood management” and highlights the opportunities for effective implementation based on better management of catchments and natural ecosystems, and well designed, `soft-engineered’ schemes to tackle flooding. 1 Directive 2000/60/EC establishing a framework for Community action in the field of water policy 4 It examines the changing policy framework highlighting significant advances, but also hurdles which continue to hold back progress towards more sustainable catchment management. The potential for sustainable flood management in a number of Scottish catchments with a history of urban flooding problems is assessed. Whilst some proposed flood alleviation schemes are moving towards a more sustainable approach, others are failing to make the necessary shift in design and land use within the catchment. The study considers inland, riverine flooding. Coastal flooding and the potential for managed realignment around the Scottish coast as a response to sea level rise is highlighted in a RSPB Scotland publication, Seas of Change2. The report concludes that the public interest is not best served by the current approach to flooding, and challenges the widely held view that flooding is “unpreventable”. A more sustainable, catchment based, approach is needed which allocates public funds towards widespread management of floodplain wetlands. This would provide overall better value for money in terms of expenditure on flood defence, nature conservation, and support to farm incomes. Key changes to policy and funding of land management schemes are necessary if sustainable flood management is to become a reality in Scotland. 2 Seas of Change: The potential for inter-tidal habitat creation around the coast of mainland Britain, RSPB report 2002 5 1 Introduction “The Water Environment and Water Services (Scotland) Bill represents a significant step forward in the co-ordination of sustainable flood prevention measures in Scotland. The river basin management planning process will provide a forum for the discussion of flood-related issues at the catchment level – the most appropriate level at which to consider these issues…..Local authorities will be required to promote sustainable flood management when exercising their function under town and country planning legislation…..development of an area that is exposed to frequent or extensive flooding, for example, the functional floodplain is likely to be unsustainable and should be avoided. If development is essential the threat of flooding should be managed in an environmentally sensitive way that recognises the role of soft engineering techniques – such as natural flood meadows and washlands – in attenuating flooding; where practical the use of existing floodplains should be maximised……In due course the construction of flood defence schemes will require consent in terms of the new control regime on engineering works in and around bodies of water….that is yet another means by which a sustainable approach to flood management is assured…….I hope it is clear to all members that significant steps have been taken, are being taken and will be taken towards addressing flood risk in Scotland in a more sustainable manner”. Deputy Minister for the Environment and Rural Development, Allan Wilson MSP Water Environment and Water Services (Scotland) Bill, Stage 3 debate, 29th January 2003 1.1 The current situation Flood management in Scotland is largely reactive and piecemeal – based primarily on flood warnings and hard concrete defences. There has been little attempt to effectively anticipate flooding or to make the most of natural water storage areas. Development has been allowed in high-risk areas with dire consequences and there have been few attempts to plan on a catchment basis. Rivers are commonly divorced from floodplains by embankments which aim to protect agricultural land. Widespread land drainage, unsympathetic forestry practices and the loss of native woodland and peatland habitats have exacerbated erosion and run-off. These factors have affected the capacity of floodplains to function as natural sponges – holding and absorbing water during flood events, then releasing it slowly once the flood peak has passed. 6 This situation reflects the fragmented responsibility for flood management in Scotland. The primary responsibility for flooding lies with individual landowners. In addition, local authorities have duties and powers under the Flood Prevention (Scotland) Act 1961 allowing them to address flood risk to non-agricultural land. The Scottish Executive is responsible for policy relating to river and coastal flooding, and the construction of flood prevention schemes. “This winter we will again witness major flooding events across the county being tackled with sandbags and canoes. In effect we are asking people to fight a losing battle. We are tackling the symptoms and doing nothing to prevent future flooding events I have seen at first hand in Perth the utter havoc and hardship that flooding can bring to ordinary people’s lives. In retrospect, it is incredible that we allowed sprawling housing estates such as exist to the north of Perth to be built on natural floodplains. Had agricultural practices further upstream not interfered even further with the natural floodplains, the scale of the flood defence work for Perth could have been much reduced”. Bruce Crawford MSP Water Environment and Water Services (Scotland) Bill, Stage 1 debate, 30th October 2002 1.2 A new opportunity The Water Framework Directive redresses the balance on flood management. It requires Member States to achieve ecological standards for waters and to “mitigate the effects of floods”.
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